Historic COS - Historic Preservation Plan City of Colorado Springs 11 June 2019 Draft
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Historic COS
PRESERVING THE CHARACTER OF THE COMMUNITY
Historic Preservation Plan
City of Colorado Springs
11 June 2019 Draft
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PRESERVING THE CHARACTER OF THE COMMUNITY
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Table of Contents
Introduction
Section 1 - Executive Summary: Vision and Process
1.1 Vision Statement 9
1.2 Purpose of Vision Statement 10
1.3 What is Historic Preservation? 11
Section 2 - Program Values and Policies
2.1 Historic Preservation and Economic Development 15
2.2 Historic Preservation and the Environment 16
2.3 Historic Preservation and Community Character 18
2.4 What are the resources we want to protect? 19
2.5 How can we achieve protection? 19
2.6 City Owned Properties 20
Section 3 - Action Item Matrix: Activity and Timeframe 25
Section 4 - Colorado Springs Historic Context
4.1 Early Settlement 29
4.2 Palmer’s Vision for “the most attractive place for homes in the West” 31
4.3 Growth and Change during the Late 1800s and Early 1900s 33
4.4 Colorado Springs Role in Military Preparedness 34
4.5 The Growth of Tourism 39
4.6 Colorado Springs Today 40
Section 5 - A History of Historic Preservation
5.1 Historic Preservation in the United States 41
5.2 HIstoric Preservation in Colorado 45
Section 6 - Colorado Springs Historic Preservation Initiatives Over the Years
6.1 Early Preservation Planning 49
6.2 Surveys and Studies 51
6.3 The 1993 Historic Preservation Plan 53
6.4 Current Regulatory Environment 55
Section 7 - Colorado Springs Historic Preservation Initiatives Over the Years
7.1 Public Participation Review Process and Acknowledgements 61
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7.2 Section 106 of the National Historic Preservation Act 63
7.3 City Neighborhood Maps 65
a. Historic Preservation Overlay Map 66
b. Downtown 67
c. North End 68
d. Old Colorado City and Hillside 69
e. North Weber and Wahsatch 70
f. Colorado College Area Register of Historic Places 71
g. Colorado Springs Register of Historic Places 72
7.4 Biblography, Web-based Resources and Photo Credits 74
7.5 Acronyms 77
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Introduction
(Executive summary to be prepared by staff to be signed by Peter/CC/Mayor)
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Project Funding
This project has been funded in part by a grant from the Peter Grant Fund for Colorado of the National Trust
for Historic Preservation.
This project is/was paid for in part by a History Colorado – State Historical Fund Grant. The contents and opin-
ions contained herein do not necessarily reflect the views or policies of History Colorado.
The activity that is the subject of this material has been financed in part with Federal funds from the National
Historic Preservation Act, administered by the National Park Service, U.S. Department of the Interior for His-
tory Colorado. However, the contents and opinions do not necessarily reflect the views or policies of the U.S.
Department of the Interior or History Colorado, nor does the mention of trade names or commercial products
constitute an endorsement or recommendation by the Department of the Interior or History Colorado.”
This program received Federal funds from the National Park Service. Regulations of the U.S. Department of
the Interior strictly prohibit unlawful discrimination in departmental federally-assisted programs on the basis of
race, color, national origin, age or handicap. Any person who believes he or she has been discriminated against
in any program, activity, or facility operated by a recipient of federal assistance should write to: Director, Equal
Opportunity Program, U.S. Department of the Interior, National Park Service, 1849 C Street, N.W., Washington,
D.C. 20240.
This project has been funded in part by a grant from the Historic Preservation Alliance of Colorado Springs of
Colorado Springs.
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Section 1 – Executive Summary: Vision and Process
1.1: Vision Statement
The vision statement for the City of Colorado Springs, as set forth in PlanCOS, states:
We will build a great city that matches our scenery.
Based on this vision, themes and Big Ideas are further developed. The theme Renowned Culture includes a
Big Idea entitled “Honor Our History” that states:
Our heritage is a key foundation of the city’s strong cultural identity. We plan on preserving the best
of our existing historic and cultural resources. Through collaboration with local organizations and new
developments, we can integrate design features that celebrate aspects of our historic legacy.
The vision for this Historic Preservation Plan, which builds upon the PlanCOS guidance, is:
Colorado Springs will be a community knowledgeable about preserving its unique history and cultural
heritage. We will be a community proud of its past and ready to share its heritage story with residents
and visitors. We will actively protect and utilize our irreplaceable historic and cultural resources as
part of our ongoing economic and community development strategy.
From this vision, we fundamentally believe the future of Colorado Springs is connected to the natural re-
sources, built environment, systems and human relationships we depend on and appreciate. This envi-
sioned future supports a balanced and wise stewardship of Colorado Springs that generations to come will
embrace and respect. As a community, we will call upon this plan to help guide our decisions wisely as we
navigate change.
Figure 1: Old Photo of Pikes Peak
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1.2: Purpose of the Historic Plan
Home is a place of belonging, familiarity, a place where a deeper history can be made. As the memory of
the front steps of your childhood home may recall a joyful youth, so can the historic buildings, landscapes,
and neighborhoods of Colorado Springs recall your belonging to a joyful community. Historic preservation
provides this deep sense of place, reminding us to reflect upon where we came from, who we are today, and
who we hope to become tomorrow.
Historic preservation enables a community to develop beyond being just a collection of streets, houses, and
buildings. It causes a city to become a “palate of place” where the stories of those who came before us can
be retold, of how booms and busts unfolded, where the actions of scoundrels and saints played out, and
where our life can play out today, enriched by the unique history of Colorado Springs.
Rather than removing the places of the past and locking historic sites away, historic preservation demands
that new uses be found and that historic sites become vital and active places, complimenting and directing
new development. In this manner, historic preservation plays an important part in the physical organization
of the City. Historic sites become centers of activity. Increased activity translates to opportunities for new
housing options, economic development, and innovations that support the long-term sustainability of the City.
So, why historic preservation? It helps us celebrate our past through our buildings and neighborhoods, serv-
ing as a foundation for our present community and enhancing the lives of future generations.
Specific Goals for the HistoricCOS update
Here are the specific goals for the update of the 1993 historic preservation plan, an update that is known as
HistoricCOS:
• Protect and preserve Colorado Springs unique historic and cultural heritage
• Update existing historic preservation plan completed in 1993
o Improve accessibility of plan using plain language and making it more illustrative and
succinct
o Enhance graphics and user-friendliness
o Make the plan web accessible
• Working closely with staff, the Historic Preservation Board, and the community, identify opportu-
nities and issues for historic preservation in Colorado Springs
o Engage in an energetic and fun public outreach process
o Explore areas where historic preservation can assist economic development and environ-
mental sustainability
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o Educate the public on the importance of historic preservation
o Help neighborhoods determine their own preservation goals
o Reach traditionally underserved and underrepresented populations in the City
o Integrate historic preservation into implementaion on the City’s comprehensive plan —
PlanCOS
This Plan has been developed by working with the City of Colorado Springs planning staff, the Historic
Preservation Board, and the energetic and informed members of the community. Colorado Springs is
unique and a community rich in history, economically vibrant, surrounded by beauty, and poised to create
another 150 years of history.
The updated plan supports a “carrot, not a stick” approach, to ensure that historic resources continue to
function as useable and dynamic resources, and to “honor history while looking to the future.” Concern that
preservation efforts will take away private property rights appears to be an important message. This conclu-
sion is backed up by the frequent comment that historic preservation should be pursued on the neighborhood
level with an emphasis on neighborhood identification signage and history.
While this desire for a grassroots approach remains an important consideration, there is also an overriding
theme relating to the importance of saving historical features of the community. This is supported by the belief
that City government must take the lead in ensuring historic resources are protected, advocating greater City
financial support for preservation activities, and providing for stronger enforcement of zoning and building
regulations. This advocacy includes the creation of more comprehensive and transparent regulations gov-
erning development, demolition of historic resources, and increased levels of city staffing devoted to historic
preservation.
Although there may be a divergence on how preservation should be administered among members of the
community, there is a widely held appreciation of the City’s history. Broadening the concept of historic pres-
ervation to include neighborhood identification and preservation, as well as the preservation of buildings and
historic sites, the community has shown its concern that the people and the stories that have characterized
the development of the City must be documented and remembered.
1.3: What is Historic Preservation?
In practice, historic preservation is “the act or process of applying measures necessary to sustain the ex-
isting form, integrity, and materials of an historic property.” (“Four Approaches to the Treatment of Histor-
ic Properties” National Park Service, U.S. Department of the Interior, https://www.nps.gov/tps/standards/
four-treatments/treatment-preservation.htm. But preservation goes beyond this very prescriptive definition.
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Preservation requires the adaptive reuse of buildings and sites so they are economically viable and can
continue to function as a useful part of the community. To accomplish adaptive reuse, historic preservation
requires innovation. More than patching holes or stabilizing foundations, historic preservation often requires
balancing faithful restoration by upgrading historic buildings with modern technologies so that they can re-
main attractive, efficient, and functional for continued use. In this manner historic preservation gives us an
opportunity to live in and be a part of our history.
It is the goal of this Plan that in exploring and using this historic preservation plan, the citizens of Colora-
do Springs will come to understand that historic preservation is not an activity that locks down growth and
forward progress. On the contrary, historic preservation can
become the catalyst of growth and an important feature of the
City’s identity. One member of the Steering Committee help-
Find out more!
Learn more about historical pres-
ing to guide this project expressed his opinion that Colorado ervation standards and guidance
Springs can become the leading mid-sized city in the United on preserving and rehabilitating
States. This is very much a possibility given its exception- historic buildings by visiting Tech-
al resources, talented workforce, and dedicated leadership. nical Preservation Services of the
However, the City cannot achieve this level of recognition National Park Service.
without a clear commitment to preserving its past. All great
cities have their creation stories and tales of past decades.
By preserving Colorado Springs’ historic resources, we are
ensuring that the City’s history remains visible and usable to-
day and for future generations.
Reusing and repurposing old buildings reinforces the urban
pattern and creates nodes of activity. It has been shown that preserved places act as activity generators
bringing increased economic development along with new and different options for housing and office space.
Historic structures and neighborhoods provide organically unique character attractive to many demographic
groups, particularly the millennial generation. The 2017 publication, Preservation for a Changing Colorado,
documents how historic preservation “strengthens our economy and our communities” http://coloradopreser-
vation.org/wp-content/uploads/2016/07/Project-Summary-Presentation-Econ-Study.pdf.
In Colordo Springs, an excellent example is the redevelopment oand adapted reuse of the Ivywild School. In
addition to providing opportunities for enhancing the built environment, historic preservation, when applied to
unique cultural activities such as heritage tourism, becomes an important aspect of the area economy. For
Colorado Springs, preservation will support existing tourist attractions while generating greater economic
development and new opportunities for visitors to enjoy, ultimately creating a unique and vibrant destination.
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Historic preservation supports sustainability. By recycling old buildings, huge inputs of energy can be avoid-
ed, and vast amounts of landfill trash withheld. Additionally, reusing and repurposing old buildings supports
infill in the urban core as supported by PlanCOS, providing opportunities for revitalizing the downtown and
other areas of the city. This can result in an infusion of housing types and opportunities to attract diverse
generations to our community.
Find out more!
Learn more about good adaptive reuse
projects in the Springs by checking out
Phantom Canyon Brewing Company,
Mining Exchange Hotel, Catalyst Cam-
pus, and Lincoln School!
Figure 2: The Mining Exchange, a Wyndham Grand Hotel
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Section 2 – Program Values and Policies
2.1: Historic Preservation and Economic Development
The economic benefits of historic preservation have been widely proven in Colorado and across the nation
for decades. Since the early “Main Street” movement - a role model program in downtown revitalization
begun in the 1970s - historic preservation has grown to become a fundamental tool for strengthening com-
munities and an effective method to achieve a wide range of public goals. Small business incubation, af-
fordable housing, sustainable development, neighborhood stabilization, commercial district revitalization, job
creation, promotion of the arts and culture, small town renewal and heritage/cultural tourism are established
examples of preservation-enhanced “place-based” economic development.
A 2017 report by Clarion Associates, Preservation for a changing Colorado: The Benefits of Preservation,
provides that:
[for] every $1 million spent on historic preservation in Colorado leads to $1.03 million in additional
spending, 14 new jobs, and $636,700 in increased household incomes across the state. And preser-
vation will continue playing an important role over the next 50 years, helping local communities adapt
to trends that will bring significant changes to Colorado. Larger economic trends also are changing
the ways in which Coloradans work, and preservation is providing new spaces for creative commu-
nities and co-working.
Numerous seminal studies over the last 30+ years, including the 2011 PlaceEconomics report, Measuring
Economic Impacts of Historic Preservation: A report to the Advisory Council on Historic Preservation, sup-
ports these findings regarding historic preservation’s role in economic development:
• Historic preservation helps enhance cultural vitality and identity, which in turn works to attract
tourists, inspire community-based volunteerism and increase tourism employment
• Increases the demand for labor and increases business for local suppliers
• Effectively targets areas appropriate for public attention
• Creates jobs in short term construction and long-term occupancy
• Increases tax bases and property values
• Reusing buildings and existing infrastructure most often reduces overall project and maintenance
costs
• Preservation activity can impact and encourage private investment in an area by demonstrating
public commitment to a district or neighborhood
• Historic tax credit programs encourage and stimulate historic preservation activity. Tax incen-
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tives, which Colorado has em-
braced with two state historic tax
credit programs, is in attracting
businesses and homebuyers to
older urban areas and historic
districts in hopes of encouraging
the re-use of old buildings rather
than adding to suburban sprawl
with new buildings
• Historic preservation is an effec-
tive planning policy to combat ur-
ban blight, reduce crime and ad-
dress affordable housing issues.
A bike ride through the historic Old North
End, a downtown stroll along Tejon Street,
an adventure with friends for shopping and
Figure 3: Firehouse on San Miguel
dining to Old Colorado City, Bonn Shopping
Center, Ivywild School and the Lincoln Cen-
ter are easily accessible ways to experience the successful, sustainable power of preservation in our local
economy. However, it is recommended that the City track these economic benefits whenever historic pres-
ervation projects are undertaken. Providing a quantifiable database of project benefits can enhance support
for historic preservation efforts throughout the City. This recommendation is carried into the Action Item List
in Section 3.
2.2: Historic Preservation and the Environment
Sustainability has come to mean more than merely being responsive to environmental issues. Historic pres-
ervation is at the core of the three pillars of Sustainability– social, economic, and environmental.
Preservation as an exercise in sustainability began with the architect Carl Elefante stating that “the greenest
building is the one that already exists.” This is not merely a pronouncement heralded by preservationists and
environmentalists alike. The “greenest building” speaks to the value of embodied energy vs. the economic
and environmental impacts of material extraction, energy costs of hauling, constructing and deconstructing,
and landfill wastelands loaded with unused – and often toxic – building materials. The very nature of retain-
ing, recycling, reusing and repurposing and repurposing buildings is both environmentally and economically
responsible.
Sustainability, within the context of historic preservation, connects directly to people and the legacy that his-
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toric places leave for future generations. Beginning mid-20th century, historic preservation has been directly
aligned with neighborhood sustainability and downtown revitalization. Historic fabric creates economically
vital, socially equitable, and strong, resilient neighborhoods. Cities. Including Colorado Springs, are compet-
itive marketplaces, vying for a talented workforce. Nationwide, cities of unique distinction - who champion
healthy living, vibrant neighborhoods and environmental sustainability – most often attract talented workforc-
es and innovative commerce.
Sustainability, as a Colorado Springs city policy, is prominently stated in PlanCOS, underscoring national and
statewide research surround preservation’s contribution to the environment and local economy.
“We do not seek to be a more resilient city to obtain national acclaim. We desire an environmen-
tally sustainable and resilient future for our city because it makes sense. We plan on leading by
example in supporting, embracing and celebrating land uses, buildings, systems, and technolo-
gies that promote water conservation and efficient energy use. We plan on building and taking
advantage of the latest cost-effective technologies that support our economic and environmental
competitiveness.” - PlanCOS, Page 14.
Among the major findings on historic preservation’s role in sustainability, reported in Older Smaller Better,
are these:
• All across America, blocks of older, smaller buildings are quietly contributing to robust local econ-
omies and distinctive livable communities. Numerous studies, reports and research analysis
demonstrates the unique and valuable role that these older, smaller buildings play in the develop-
ment of sustainable cities. Established neighborhoods with a mix of older, smaller buildings per-
form better than districts with larger, newer structures when tested against a range of economic,
social, and environmental outcome measures.
• Buildings are more than their individual components. The design, materials, type of construction,
size, shape, site orientation, surrounding landscape and climate all play a role in how buildings
perform. Historic building construction methods and materials often maximized natural sources
of heating, lighting and ventilation to respond to local climatic conditions. The key to a successful
rehabilitation project is to identify and understand any lost original and existing energy-efficient
aspects of the historic building, as well as to identify and understand its character-defining fea-
tures to ensure they are preserved. The most sustainable building may be one that already ex-
ists. Thus, good preservation practice is often synonymous with sustainability.
(Source: https://forum.savingplaces.org/act/research-policy-lab/older-smaller-better)
It is recommended that the City establish a robust information program on the rehabilitation and restoration of
older structures within the community. This program would include information on the environmental benefits
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of rehabilitation rather than a scrape-and-re-
place ethic. In the same way that most peo-
ple understand the benefits of recycling as
much household trash as possible, the en-
vironmental benefits of preservation should
be made clear. This recommendation has
been carried forward to the Action Item List
in Section 3.
2.3: Historic Preservation and
Community Character
Human memories are grounded in place.
How each of us experiences the built en-
vironment is shaped in our longstanding
Figure 4: New construction house on Pikes Peak
awareness that old places have touched
our lives and remain close in our memories.
People have a deep existential need to be rooted in time. Of the myriad ways we perceive history, the most
profound is through the built environment. It’s the most readily visual experience about human existence.
Fundamentally, good architecture is not simply how it looks, but how we feel about it, and the way it allows
us to act, behave, think and reflect. We are a community fully present with our geography – with eons of
exposed time readily accessible to see, touch, smell, walk on and witness up close. We value our ancient
vistas just as we value our durable, sustainable and beautiful historic places. These are the places that en-
rich our quality of life.
Neighborhood leaders are increasingly concerned about insensitive changes taking place locally: demoli-
tion, partial demolition, alterations, larger-scale additions, incompatible infill development, neglect, deterio-
ration or abandonment, public works alterations and rezonings often impact the long-standing character or
pedestrian scale of a neighborhood. They also recognize that one component of preserving neighborhood
character is protecting the open spaces that provide the essential context for historic streetscapes and the
necessary voids in the built environment. These neighborhood leaders are seeking help to protect the aes-
thetic and overall value of their neighborhoods, though are often reluctant to seek full historic overlay zoning
with comprehensive design review. They are looking for ways to balance powerful forces of radical change
with the need to update their properties using community education, outreach, incentives and selective land
use review techniques.
Historic preservation policies recognize that not all old buildings in historic neighborhoods are salvageable.
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Some are functionally, technically and architecturally beyond redemption. Properties need to be used in or-
der to survive. Older buildings may need enlarging and updating to meet today’s living standards, involving
the incorporation of new materials and environmental systems.
It is recommended that the City implement a program to develop Certified Neighborhood Organizations that
would include all neighborhoods within the City. While many neighborhoods have developed their own or-
ganizations that focus on neighborhood character, the process and resulting representation is by no means
uniform. A Certified Neighborhood Organization (CNO) program, similar to one that has been implemented
in Denver, would perform uniform training for neighborhood leaders and a mechanism for representation
before boards and City Council on matters relating to the neighborhood. This recommendation has been
carried into the Action Item List in Section 3.
2.4: What are the Resources We Want to Protect
Colorado Springs is home to thousands of significant historic resources, comprising neighborhoods, busi-
ness districts, publicly-owned buildings and structures, industrial and civic spaces, parks and open spaces.
Many of these historic resources have been previously identified in inventory surveys, yet only a small per-
centage are protected through historic overlay zoning or come under review by the City’s Historic Preserva-
tion Board. Most of the Old North End National Register District has local overlay design review, an import-
ant distinction because “all preservation is local.” It should be noted that National Register listing affords no
protection nor triggers design review at the
local level. Following is a discussion of rec-
ommended actions to support Historic Pres-
ervation. These recommended actions also
appear as an “Action Item Matrix,” found in
Section 5 of this document.
2.5: How can we achieve protec-
tion?
All buildings and sites already listed in or el-
igible for listing in the National Register of
Historic Places and/or the Colorado Reg-
ister of Historic Properties should receive
automatic review through the HPB. A list of Figure 5: Firehouse on Weber in Downtown
these properties should be kept current in
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the City’s Planning Department and provided to Regional Building with criteria.
2.6: Protecting City Owned Properties
The City of Colorado Springs is the owner and steward of numerous historic properties and acknowledges
its responsibility for the thoughtful management and preservation of the significant resources among them.
When HistoricCOS was conceived, the City anticipated that the project would include taking a look at all of its
municipally-owned historic properties. While this may seem like a clear task, it was soon discovered that the
City owns more than two thousand properties of varying ages, not all of them historic. As an advocate for his-
toric preservation, the City views how it treats its own properties as an example for the rest of the community.
The City should continue to set the highest standard by documenting and evaluating publicly-held resources
and ensuring that the most significant of these are designated and receive some degree of protection. The
preservation program would benefit greatly from a focused effort to identify significant City-owned resources.
This would help to integrate historic preservation throughout all departments and into the City’s governance
culture and serve as a mechanism for educating and encouraging the community. To achieve these goals,
several tasks will be necessary. Naturally, the proposed tasks will need to be completed as staff resources
and funding allows. These tasks are described at length here and are part of the Action Item Matrix presented
in Section 3.
Figure 6: City owned Auditorium on Kiowa
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City government should nominate City-owned properties which have been identified as exhibiting historic
and/or architectural significance for historic preservation overlay zone designation and, if determined eligible,
to the State or National Register of Historic Places.”
Task One – Initial Database Research: The first task that needs to be completed is to refine the list of more
than two thousand City-owned properties to determine which are historic and which are not. This winnowing
of the list based upon the ages of resources will require assistance from the various departments. What will
need to be determined at this stage is what resources are present on each site along with some sense of
when they were developed. The standard threshold for what constitutes a historic resource is typically fifty
years, although that mark is constantly moving forward as time passes. Consequently, it would benefit the
City to establish a policy for how newly-acquired properties are reviewed on an ongoing basis. In any case,
the initial research process is expected to lower the number of relevant properties well below two thousand
as many are found to be much younger.
In addition to working from the current list of City-owned properties, it is realistic to assume that some re-
sources may have been overlooked. Not only does the City own various buildings, but it also owns potentially
historic sites, structures and objects such as open space areas, cemeteries, ranching and agricultural sites,
archaeological sites, roads and medians, bridges and viaducts, parks and natural areas, public utilities and
water resources, and statues and public art. Few if any of these will appear in assessor’s office records since
they are not taxed, and some may not even be listed in the City-owned properties database. In addition, it is
important to capture preservation easements such as the one on the Atchison, Topeka & Santa Fe Railroad
depot. This phase will presumably require research through the records of relevant city departments, and
some field verification may be necessary.
While the initial research stage will provide the City with a shorter list of historic resources, it is important to
understand that a historic property is not necessarily a significant one. In other words, age alone cannot be
used as the sole factor in determining whether a historic property is significant or not and whether it merits
further attention. This next level of decision-making requires a process of documentation and analysis.
Task Two – Determining the Integrity of the Resources: After the list of municipally-owned properties is
shortened by determining the ages of the resources, the remaining properties (all presumably over fifty years
old unless they are younger and of exceptional importance) will need to be looked at more closely to find
out if they retain an adequate level of architectural or structural integrity. This process should be guided by
the same state and federal standards that are used for conducting historic resource surveys and nominating
properties to the State and National Registers of Historic Places. Refinement of the list of significant historic
City-owned resources can be accomplished by City staff, by a consultant, or by neighborhood volunteers.
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However, they must be familiar with the standards used to assess integrity. Only those properties that are
found to exhibit good to high levels of integrity would remain on the list of potentially significant historic re-
sources.
Task Three – Determining the List of Significant Resources: This final stage of analysis will involve
taking those properties found to be at least fifty years old and that exhibit a substantial level of integrity and
determining which are in fact significant and merit further preservation action. Due to the expertise this will
require, determinations will have to be made by experienced City planning staff or a preservation consultant.
Analysis at this stage should follow the published guidelines established by History Colorado and the Depart-
ment of the Interior and should result in a written record about each property. Due to the number of resources
involved, this task may have to be completed in more than one phase.
Once the refined list of significant historic City-owned properties is established, several steps need to be
taken to ensure that the resources are recognized, protected and preserved. The following items should be
considered as policy recommendations.
• The City of Colorado Springs should institute a process for the ongoing documentation of historic
properties that the City already owns and for those new ones that are acquired. Because the
general list of City-owned properties includes resources that will pass the fifty-year mark as time
progresses, it is critical that the City have a standard procedure for their review and analysis.
Figure 7: City owned property on South Nevada
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PRESERVING THE CHARACTER OF THE COMMUNITY
• As the City disposes of properties, it should place City-held easements on eligible and land-
marked City-owned properties before they are transferred to ensure they are preserved.
• The City should move forward with the designation of significant City-owned resources through
overlay zoning and by nominating them to the State and/or National Registers if eligible.
• The public should be invited to participate in discussions, whenever possible, regarding how the
City will manage and preserve specific City-owned resources. This can be accomplished through
the scheduling of open meetings and charrettes.
• The Historic Preservation Board should participate in review of all plans and policies involving el-
igible and landmarked City-owned properties. The HPB may also have a role to play in the tasks
described above as the City begins to identify significant historic resources from the larger list of
City-owned properties.
• The City should establish a management plan (perhaps titled a “stewardship plan”) for each sig-
nificant City-owned resource to ensure appropriate uses and to identify maintenance and preser-
vation needs. Each plan will need to be site-specific and should include detailed documentation
of the property as well as analysis of its resource management issues, a statement of additional
work needed, a plan to address physical needs, a determination of appropriate use, identification
of funding sources, a programming plan, and a maintenance plan.
• The City should identify realistic funding mechanisms so that the departments managing his-
toric resources will have access to adequate funds for the maintenance and preservation of the
most important City-owned sites. Based upon this information, the City should work to provide
adequate funding for maintenance, rehabilitation and restoration efforts. With limited resources
available, a prioritization schedule will need to be developed, both for work at specific sites and
throughout the city.
• All preservation work done at City-owned historic properties should be completed in accordance
with the Secretary of the Interior’s Standards for the Treatment of Historic Properties and other
relevant guidelines. The departments managing the properties need to be made aware of these
standards and guidelines and should make sure that contractors follow them as well.
• The City may want to launch an ongoing program of marking historically significant City-owned
properties with interpretive plaques.
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Section 3 – Action Item Matrix: Activities and Timeframes
The following recommended actions are brought forward from Plan sections. Although recommended time-
frames are provided here, all actions will be subject to completion as staff availability and funding allows.
Timeframes for completion are defined as follows:
Near Term – 1-3 years
Long Term – 3-5 years
Ongoing = Current and Continuing
Task Area One: Community Survey and Education
1.1 City Hosts Public Survey Workshops (Near Term)
1.2 City Develops a Citywide Survey Plan (Near Term)
1.3 Secure Funding and Launch Surveys (Near Term)
1.4 Present and Distribute Survey Results To Public (Near and Long Term)
1.5 Expand Partnerships with Local, Regional, and Statewide Preservation Organizations to Provide Educa-
tion and Outreach in All Aspects of Preservation (Ongoing)
1.6 Develop a Program for Identifying and Celebrating Historic Resources Through Interpretive Plaques,
Signage and Web-Based Information (Near Term)
Task Area Two: Identify and Manage City-Owned Historic Resources
2.1 Develop Policy for Managing City-Owned Historic Resources (Near Term)
2.2 Identify and Prioritize Important City-Owned Resources (Near Term)
2.3 Map City-Owned Historic Resources and Update Regularly (Long Term)
2.4 Coordinate Management of Projects with City Departments (Ongoing)
Task Area Three: Preservation and the Private Sector
3.1 Develop and Support Certified Neighborhood Preservation Organizations (Near Term)
3.2 Expand Overlay Zoning to Additional Historic Areas in Coordination with Property Owners, Neighborhood
Organizations, and Area Preservation Organizations (Ongoing)
3.3 Provide Guidance for Private Property Owners Seeking Local Landmark Designation (Ongoing)
3.4 Provide Guidance for Private Property Owners Seeking Financial Assistance Through Grants and Tax
Credits (Ongoing)
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PRESERVING THE CHARACTER OF THE COMMUNITY
3.5 Develop Incentives to Encourage Property Owners to Engage in Preservation (Near Term)
Task Area Four: Improvements to the City’s Preservation Program
4.1 Analyze and Update the City’s Preservation Ordinance, City Codes, and Land Use Regulations to Ensure
Compliance with the Revised Preservation Plan (Near Term)
4.2 Create Dedicated, Full-Time Preservation Staff Positions in the Planning and Community Development
Department (Near Term)
4.3 Develop a Fully Functional Preservation Program within the Planning and Community Development De-
partment (Long Term)
4.4 Improve Leadership and Skilled Participation in the Historic Preservation Board (Near Term)
4.5 Evaluate the Benefits of Elevating the Historic Preservation Board to the Status of a Commission (Near
Term)
4.6 Follow Certified Local Government Requirements for Maintaining the City’s CLG Status (Ongoing)
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REVISED ACTION ITEM MATRIX (05-JUN-19)
Current: Near Term: Long Term:
2019 2020 2021 2022 2023 2024 2025
City of Colorado Springs: Historic Preservation Plan Update
City of Colorado Springs - 11 June 2019
Task Area One -Community Survey and Education
1.1 City Hosts Public Survey Workshops
1.2 City Develops a Citywide Survey Plan
1.3 Secure Funding and Launch Surveys
1.4 Present and Distribute Survey Results to Public
1.5 Expand Partnerships with Preservation Organizations for Education and Outreach
Historic COS: Preserving the Character of the Community
1.6 Program for Identifying and Celebrating Historic Resources; Plaques, Signage, Web
Task Area Two - Identify and Manage City-Owned Historic Resources at the Inn at Aspen!
2.1 Develop Policy for Managing City-Owned Historic Resources
2.2 Identify and Prioritize Important City-Owned Resources
2.3 Map City-Owned Historic Resources and Update Regularly
2.4 Coordinate Management of Projects with City Departments
Task Area Three - Preservation and the Private Sector
3.1 Develop and Support Certified Neighborhood Preservation Organizations
3.2 Expand Overlay Zoning to Additional Historic Areas
3.3 Provide Guidance for Private Property Owners Seeking Local Landmark Designation
3.4 Provided Guidance for Private Property Owners Seeking Financial Assistance
3.5 Develop Incentives to Encourage Property Owners to Engage in Preservation
Task Area Four - Improvements to the City's Preservation Program
4.1 Analyze, Update the City's HP Ordinance and Land Use Regs for Plan Compliance
4.2 Create Dedicated, Full-Time Preservation Staff Positions in Community Development
4.3 Develop Fully Functional HP Preservation Program in Community Development
4.4 Improve Leadership and Skilled Participation in the Historic Preservation Board
4.5 Evaluate Benefits of Elevating the HP Board to Commission Status
4.6 Follow Certified Local Government Requirements for Maintaining CLG Status
PRESERVING THE CHARACTER OF THE COMMUNITY
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Section 4 – Colorado Springs Historic Context
4.1: Early Settlement
Indigenous Peoples and Early Exploration
The City of Colorado Springs has grown from the confluence of Mon-
ument and Fountain Creeks, both tributaries to the Arkansas River.
This pre-historic way station, presided over by 14,115-foot Pikes
Peak, or in the Ute tongue Tava, meaning “Sun Mountain,” was a tra-
ditional destination of the Ute and other indigenous peoples as they
passed between the Great Plains and the hunting grounds to the west.
The Ute Indians were respected as fierce defenders of their mountain
lands and were traditional enemies of the Plains Indians. It was from
this confluence and the slopes of the mighty Sun Mountain that the
Utes kept a watchful eye on the Arapaho, Cheyenne, Kiowa and other Figure 8: Zebulon Pike
indigenous groups that traveled up and down the Front Range.
Zebulon Pike’s expedition in 1806 provides the first recorded visit to
the region by Euro-American peoples). Sent west by the federal government, Lieutenant Pike was
directed to explore the headwaters of the Arkansas River, acquired from the French in the Louisiana
Purchase of 1803. Pike’s exploration of the southwestern area of the purchase mirrored the 1803 Lewis
and Clark expedition, which was primarily charged with surveying the northwestern portion of the pur-
chase and locating the western extent of the continent. Pike first viewed the mountain which bears his
name in November 1806 from the Arkansas River Valley. While he referred to the mountain as Grand
Peak and later U.S. military expeditions posited other names for the massif, the popularity of Pike’s
published notes from his expedition and explorer John C. Fremont’s use of the name “Pike’s Peak” in
his widely read journals established the mountain’s enduring name.
Quick on the heels of the initial military expeditions, fur trappers and other adventurers passed through
the region in search, like their Ute predecessors, for safe passage between the vast bison herds of the
plains and the trapping grounds of the high mountains. Most notable of this wave of visitors was Kit
Carson, the renowned mountain man from Taos, New Mexico, guide to the Fremont expedition, and
namesake of the current military base, Fort Carson.
The Extractive Economy
The discovery of placer gold at the confluence of Cherry Creek and the South Platte River, the future lo-
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cation of Denver, by the Russell Party in the summer of 1858 triggered a flood of fortune seekers cross-
ing the Great Plains, some with “Pikes Peak or Bust” emblazoned on their wagons. As the prospectors
filtered out from the disappointing Cherry Creek and South Platte gold strike in search of other promis-
ing reports of gold in Monument and Fountain Creeks, Colorado City was founded in August 1859. By
the following March, 240 residences had been established in the first permanent American settlement
in the Pikes Peak region. While little gold was found in Monument and Fountain Creeks, the location
of Colorado City, at the base of a good pass into the mountains which eventually led to more promising
gold and silver finds, proved an advantageous location for outfitters supplying the hopeful prospectors.
Colorado City was designated in 1861as the capital of the Colorado Territory. Emboldened by this
recognition of their settlement, the town’s founders donated fourteen acres for construction of a state
capitol building. Unfortunately, the ramshackle accommodations provided to the territorial legislature
caused it to move the assembly first to Golden before finding a permanent home in Denver. Despite this
setback, Colorado City built upon the initial wave of development resulting from the gold rush and suc-
cessfully cemented its place as an important entry point and supply center for the mountains to the west.
The wealth generated by the gold finds laid the foundation for the development of Colorado Springs.
Among the many characters of this period, James F. Burns and James Doyle, two plumbers in Colorado
Springs, staked a claim in the Cripple Creek District that
became known as the Portland Mine. Burns would go on
to live in one of the grander residences on Wood Avenue, Find Out More!
known as Millionaires Row, built the architecturally signif- Donated by Frederick and Kather-
icant Burns Theatre (whose demolition in 1973 sparked ine Farrar, visit the Western Muse-
early preservation interest), and went on to finance the rail- um of Mining and Industry and see
roads that would eventually contribute to the wealth and
all the exhibits.
status of Colorado Springs. Burns was also instrumental
in the construction of Colorado Springs’ City Hall, donat-
ing the land for the construction of the building. Another
benefactor of the city that started from modest means was
a carpenter named Winfield Scott Stratton. His Indepen-
dence and Washington claims in the Cripple Creek District
yielded an incredibly rich vein of gold. Rather than fall into
a life of ease, Stratton spent his fortune on a number of
public improvements for the city. Stratton took over a fail-
ing street railway and built “The Interurban” into a 43-mile
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system that provided affordable transportation for the residents of Colorado Springs, and subsequently
spurred the outward expansion of neighborhoods in the city. Stratton also donated the use of his Inde-
pendence Building to the U.S. Mail Service while the current post office was being built on land that he
donated at the southeast corner of Nevada and Pikes Peak Avenue.
In addition to the mining of precious metals, coal mining was an important aspect of the city’s econo-
my with 80 coal mines operating in and around the Colorado Springs area. The coal was used to heat
buildings and supported electrical generation for streetcars and gold mills in Colorado City. Some of
the abandoned coal tunnels still exist, primarily on the north end of town in the Rockrimmon, Cragmor,
and Country Club neighborhoods. Other industries that supported mining operations would go on to
leave a mark on the architecture of the city. Hassell Ironworks, in addition to supporting the gold field
activities, produced decorative iron fencing that today is cherished for its attractive appearance and
historical value. Examples of this fencing can be found, among other locations, along Mill Street and
throughout the Old North End.
4.2: Palmer’s Vision for “the most attractive place for home in the West”
In 1869 William Jackson Palmer, a Civil War general and superintendent of construction for the Kansas
Pacific Railroad, which was then attempting to push west along a southern route through present day
Pueblo, traveled by stagecoach from Pueblo to Denver. Stopping in Colorado City for breakfast, Palmer
recounted:
At Colorado City—“the Garden of the Gods”—we stopped to
breakfast. I freshened up to a preliminary bath in the waters of
the Fountain. Near here are the finest springs of soda and the
most enticing scenery. I am sure there will be a famous sum-
mer resort here soon after the railroad reaches Denver.
Palmer was impressed by the healthy air, blue sky, mountain vistas
and rugged canyons. In a letter written to his future wife a few days
later, Palmer described his plan to purchase several thousand acres
of land near Monument Creek to create a “grand estate” to share and
enjoy with his personal friends.
The decision to run the Kansas Pacific railroad through Denver rather
than Pueblo forced Palmer to rethink his plans for the Pikes Peak region. Figure 9: William Jackson Palmer
Pivoting to an entrepreneurial idea, Palmer sought the creation of his
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own rail company that would involve his trusted friends and
associates, as well as members of his old military regiment
Did You Know?
with access to financial capital. The Denver & Rio Grande CS & IR Streetcar 48 is the only sur-
Railway was incorporated in 1871. The railroad was en- viving streetcar from the 1st batch
visioned as an ideal enterprise, incorporating progressive Winfield Stratton bought for the city
trolley system. Learn more about the
concepts such as employee stock ownership and mutual
streetcar.
interests between the capitalists and laborers. Palmer’s
vision included the idea of creating a company town with
libraries and lecturers for the benefit of his “little family.” In
1871, his dream became a reality and he named it Colorado
Springs. As with the Utes, the fur trappers, and the gold
seekers before him, Palmer saw in the confluence of Mon-
ument and Fountain Creeks an important location to “base
your dreams,” where dreams could be pursued, a sentiment
that continues to this day.
Figure 10: Streetcar 48
Palmer sought to take his Denver & Rio Grande Railroad
(D&RG) south through Pueblo and then west into the moun-
tains, eventually seeking the headwaters of the Arkansas River. Construction of the D&RG began in 1871
and, for ease of access through mountainous terrain, it would become the first significant narrow-gauge
railroad and the first railroad to be built without federal land grants west of the Mississippi. Within a decade,
while Palmer had relinquished control of the D&RG, a rival railroad was formed, the Midland Railroad. A race
to the rich silver fields around Aspen was underway! The D&RG beat the Midland to Aspen by a mere six
weeks in 1887. Other railroads to reach Colorado Springs included the Atchison, Topeka & Santa Fe arriving
in 1887, and the Chicago, Rock Island & Pacific following in 1888.
In 1890, a cowboy and prospector named Bob Womack found gold on the southwestern flank of Pikes
Peak. The find led to a new gold rush, and Cripple Creek was soon well on its way to becoming the
self-proclaimed “Greatest Gold Camp on Earth.” In 1873, when the United States switched from the
Silver Standard to the Gold Standard for its monetary basis, the timing of the Cripple Creek strikes was
ideal to fuel the wealth on the other side of Pikes Peak in Colorado Springs. Ore extracted from the
Cripple Creek district was transported via the Midland Railroad to the west side of Colorado Springs to
be milled. However, the exorbitant freight prices charged by the Midland Railroad attracted other rail
lines to be established. Most notable was the Colorado Springs & Cripple Creek District Railway, com-
monly referred to as the Short Line. In addition to hauling ore and other freight, the scenic character
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of the route caused the Short Line to become a tourist
Did You Know? attraction and the railroad instituted a regular schedule
Zalmon Simmons decided to start the of excursion trains. In 1901, then Vice-President Teddy
cog railway up Pikes Peak to be more Roosevelt traveled on the Short Line and of his journey
comfortable to admire the view and he exclaimed, “This is the trip that bankrupts the English
check up on his telegraph wire insu-
lators that ran to the Army Signal Sta- language.”
tion. Also the highest operating train
Ore from the Cripple Creek District continued to be hauled
track in the county. Learn more about
the Pikes Peak Cog Railway. to the Golden Cycle Mill just south of Colorado City until
1949. The mill smokestack is still visible atop Gold Hill
Mesa, which is itself formed by the spent tailings of the
Cripple Creek District ore. Together, these silent monu-
ments to an era passed are a reminder of the early trials
and successes weathered and enjoyed by the City of Col-
orado Springs.
4.3 : Growth and Change During the late
1800s and early 1900s
Figure 11:Pikes Peak Cog
The wholesome climate first lauded by General Palmer
proved to be the next economic and societal boom for Colorado Springs. The great influx of immigrants to
the United States in the late 19th and early 20th centuries, coupled with the industrialization of major cities
such as New York, Pittsburgh and Chicago created an overpopulation and public health crisis in those plac-
es. Looming large was the spread of tuberculosis. Commonly referred to as consumption, the communica-
ble disease was a leading cause of death during this period in American history.
Prior to the advent of effective antibiotics in the 1940s, tuberculosis was generally seen as a death sentence.
The fear of infection drove people to great lengths to seek a cure. Magic elixirs, special diets, and dubious
practices were all propagated to those fearing contracting the disease or fighting its effects. Medical science,
however, went further in attempts to provide effective solutions to fight the disease. Sanatoriums, first pop-
ularized in Europe, were founded to provide patients with access to a regimen of rest, fresh air, high calorie
nutrition, sun exposure (heliotherapy), individual isolation, and carefully regulated activity. Attempts at lung
surgeries were also made in the more serious cases, although these rarely worked. Colorado Springs, locat-
ed far from the tenements and factories and fouled air of the eastern industrialized cities, at a high and dry
elevation, and with abundant opportunities for natural beauty and fresh air, swelled with health seekers. By
1880, Dr. Samuel Edwin Solly, himself a recovered tuberculosis patient and promoter of the healthy climate
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City of Colorado Springs - 11 June 2019 33You can also read
